[Federal Register Volume 61, Number 179 (Friday, September 13, 1996)]
[Proposed Rules]
[Pages 48580-48594]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-23532]
[[Page 48579]]
_______________________________________________________________________
Part VI
Advisory Council on Historic Preservation
_______________________________________________________________________
36 CFR Part 800
Protection of Historic Properties; Proposed Rule
Federal Register / Vol. 61, No. 179 / Friday, September 13, 1996 /
Proposed Rules
[[Page 48580]]
ADVISORY COUNCIL ON HISTORIC PRESERVATION
36 CFR Part 800
Protection of Historic Properties
AGENCY: Advisory Council on Historic Preservation.
ACTION: Notice of proposed rulemaking.
-----------------------------------------------------------------------
SUMMARY: The Advisory Council on Historic Preservation is proposing
changes to its regulations in order to implement the 1992 amendments to
the National Historic Preservation Act and to improve and streamline
the regulations in accordance with the Administration's reinventing
government initiatives. The proposed changes will modify the process by
which Federal agencies consider the effects of their undertakings on
historic properties. On October 3, 1994, the Council published for
comment in the Federal Register a notice of proposed rulemaking that
set forth changes to the Section 106 process. After reviewing the
comments on the October 1994 proposal and in response to agency
downsizing and restructuring, the Council substantially changed its
proposal to better meet the streamlining goals of the Council.
Therefore, the Council is publishing a new notice of proposed
rulemaking. In its streamlined proposal, the Council seeks to balance
the interests and concerns of various users of the Section 106 process,
including Federal agencies, State Historic Preservation Officers
(SHPOs), Native Americans and Native Hawaiians, industry and the
public.
DATES: Comments must be received on or before November 12, 1996. The
Council will provide on request an additional 30 days for an Indian
tribe to submit comments. A representative of the tribal government
must file a request with the Council no later than November 12, 1996.
ADDRESSES: Comments should be addressed to the Executive Director,
Advisory Council on Historic Preservation, 1100 Pennsylvania Avenue,
Suite 809, Washington, D.C. 20004. Fax 202- 606-8672. Comments may be
submitted via E-Mail to achp@achp.gov.
FOR FURTHER INFORMATION CONTACT: Stephanie Woronowicz, Information
Assistant, Advisory Council on Historic Preservation, 1100 Pennsylvania
Avenue, Suite 809, Washington, D.C. 20004 (202) 606-8503.
SUPPLEMENTARY INFORMATION:
I. Background
Section 106 of the National Historic Preservation Act of 1966, as
amended, 16 U.S.C. 470f, requires Federal agencies to take into account
the effect of their undertakings on properties included in or eligible
for inclusion in the National Register of Historic Places and to afford
the Council a reasonable opportunity to comment on such undertakings.
Public Law 102-575 was enacted in October 1992, and contains amendments
to the National Historic Preservation Act which affect the way Section
106 review is carried out under the Council's regulations.
Additionally, as part of the Administration's National Performance
Review and overall streamlining efforts, the Council undertook a review
of the current regulatory process to identify potential changes that
could improve the operation of the Section 106 process and conform it
to the principles of this Administration. The Council commenced an
information-gathering effort to assess the current Section 106 process
and to identify desirable changes.
As a part of this effort, the Council sent a questionnaire to 1,200
users of the Section 106 process, including Federal agencies, SHPOs,
State and local governments, applicants for Federal assistance, Native
Americans, preservation groups, contractors involved in the process,
and members of the public. The questionnaires sought opinions on the
current regulatory process and ideas for enhancing the process. The
Council received over 400 responses. After analyzing the responses and
holding several meetings with Federal Preservation Officers and SHPOs,
the Council staff presented its preliminary findings to a special
Council member Task Force comprised of the Department of
Transportation, the National Conference of State Historic Preservation
Officers, the National Trust for Historic Preservation, and the
Council's Native American representative, expert member and chairman.
The Task Force adopted the following findings and attempted to
craft the regulations to reflect them: (1) Federal agencies and SHPOs
should be given greater authority to conclude Section 106 review; (2)
the Council should spend more time monitoring program trends and
overall performance of Federal agencies and SHPOs and less time
reviewing individual cases or participating in case-specific
consultation; (3) Section 106 review requirements should be integrated
with environmental review required by other statutes; (4) enforcement
of Section 106 should be increased and specific remedies should be
provided for failure to comply; and (5) there should be expanded
opportunities for public involvement in the Section 106 process.
In the proposed regulations published in the Federal Register on
October 3, 1994, the Council sought to meet the stated findings and
objectives adopted by the Task Force. The Council received
approximately 370 comments on the October 1994 proposal. Generally,
commenters supported the overall goals and direction adopted by the
Task Force, but found that the proposed regulations failed to implement
the stated goals. Particularly, many commenters disagreed with the role
of the Council as arbiter of disputes over application of the
regulations, the public appeals process, and provisions dealing with
enforcement. At a Council membership meeting in February 1995, the
Council decided to continue its dialogue with major user groups of the
Section 106 process in an effort to resolve their concerns. The Council
membership also reaffirmed the objective of reducing regulatory burdens
on Federal agencies and SHPOs and focussing the review process on
important historic preservation issues. The Council solicited the views
of users of the Section 106 process once again by convening separate
focus groups with local governments, industry representatives, Native
Americans, and Federal agency officials in May 1995. As a result of
these meetings, and after considering the views of commenters, the
Council drafted a substantially revised proposal and circulated the
draft informally in July 1995 to the 370 commenters who had commented
on the October 1994 notice of proposed rulemaking.
The Council received approximately 80 comments on the informally
distributed draft. Generally, the commenters found the July 1995 draft
to be an improvement on the October 1994 proposal. Again, however,
Federal agencies noted that the Council did not go far enough in
removing itself from routine cases and in bringing finality to the
process. Federal agencies also remained concerned that the public
participation provisions were too open-ended and inadequately defined
the roles and rights of participants in the process. Federal agencies
also considered the (National Environmental Policy Act (NEPA)
integration section to be a step forward, but submitted that its
substitution provisions should be extended to environmental assessments
as well as environmental impact statements and, overall, could provide
[[Page 48581]]
better integration of NHPA and NEPA. In contrast, the majority of SHPOs
did not want the Council to remove itself further from the Section 106
process and did not want the NEPA integration section to be extended to
environmental assessments. The National Conference of State Historic
Preservation Officers, as well as many of its member SHPOs, supported
the public participation process as set forth in the July 1995 draft,
but sought clarification on the roles and responsibilities of Federal
agencies under Section 106. Industry commenters deemed the July 1995 a
vast improvement over the 1994 proposal, however, they remained
concerned with the appeals procedures and found the process too
burdensome. Industry also remained concerned about the public
participation provisions. The current proposal is an attempt to balance
the many views of the Section 106 users on how to achieve the Task
Force's goals while fulfilling the Council's mission of ensuring
reasonable consideration of historic properties in agency decision-
making.
II. Summary of Regulatory Changes
The proposed regulations would significantly modify the current
Section 106 process. The regulations provide a greater opportunity for
Federal agencies to resolve historic preservation issues with the SHPO
and other involved parties, without direct Council involvement. As a
result, the proposed regulations redefine the role of the Council to
involve the Council in controversial cases where the Council's unique
perspective and expertise can facilitate effective solutions. The
proposed regulations also provide new flexible methods of obtaining
Council comment on certain undertakings or effects.
Subpart A--Background and Policy
This Subpart adds a section which describes the three methods of
complying with Section 106: alternate procedures, exemptions or
programmatic agreements, and general procedures set forth in Subpart B.
As one of those methods, it encourages Federal agencies to meet their
Section 110 (a)(2)(E) requirements by developing their own alternate
procedures for compliance. This Subpart also modifies the description
of the participants in the Section 106 process and the roles of the
participants. Participants fall into three categories: principal
parties, consulting parties, and the public. Principal parties are
those with statutory responsibilities under Section 106: the Federal
agency official and the Council. Consulting parties are those with
consultative responsibilities under the Act: the SHPO and Indian tribes
and Native Hawaiian organizations. Affected parties are those with
direct legal or financial interests in the effects on undertaking on
historic properties: local governments and applicants for Federal
assistance or permission.. The public, under the proposed regulations,
includes the general public at large and the ``interested public.'' The
proposed regulations define the interested public to include
individuals and organizations that have indicated to the agency
official a particular interest in the effect of the undertaking.
Interested public includes owners of real property affected directly by
the undertaking, traditional cultural authorities, the SHPO when the
Indian tribe has assumed the function of the SHPO under Section
101(d)(2) of the Act and others that request to be treated as such.
Subpart B--Section 106 Procedures
This Subpart provides the standard general procedures for
compliance with the Act. It adds a new section which clarifies how a
Federal agency should initiate the 106 process in order to emphasize
the importance of early planning and coordination with reviews required
by other statutes. By emphasizing the importance of proper initiation
of the process, the Council seeks to address concerns regarding undue
delay in projects. The identification step at Section 800.4 has been
changed by adding two new concepts to enhance flexibility in the
regulations. First, when locating historic properties, the proposed
regulations provide that an agency must consider the scope and type of
identification necessary based on a variety of factors, including the
magnitude of the undertaking and its likely effects. It is intended
that Federal agencies will focus their identification efforts on those
portions of the area of potential effects most directly related to
their jurisdictional or financial control. Second, the proposed
regulations allow for ``phased identification'' to accommodate the
practice of choosing several alternatives in a project. As specific
aspects or locations of a project are determined, then the agency
official completes the identification.
This Subpart also removes the separate ``effect'' determination
step and now proposes combining the ``no historic properties'' finding
and the ``no effect'' finding into a single ``no historic properties
affected'' finding requiring 15 days for SHPO review. The agency moves
directly to assessing adverse effects once it determines that historic
properties may be affected. The adverse effect criteria currently in
Section 800.9(b) have been revised to better define adverse effects and
have been moved to Section 800.5. The current exceptions to the
criteria have been transformed into ``standard treatments'' listed in
Section 800.5(a)(4) with the addition of a bridge replacement standard
treatment and a modification of the exception for archeological
resources that clarifies the basis for using the standard treatment and
ensures public dissemination of any resulting archeological studies.
The proposed regulations also remove the Council from review of no
adverse effect determinations and standard treatment agreements. The
amendments allow Federal agencies to conclude the Section 106 process
at this level without Council review, subject to specific requests for
Council review of agency findings under Section 800.9(a).
The proposed regulations, in Section 800.6(a)(1), specify instances
when an agency official must request the Council to become involved in
the consultation to resolve adverse effects. The Council may or may not
participate after receiving such a request. The proposed regulations
provide that the Council may enter the consultation on its own
initiative if the Council determines it is necessary to ensure that the
purposes of Section 106 are met, i.e., that an agency is properly
taking into account the effects of the undertaking on historic
properties and affording the Council its reasonable opportunity to
comment. The proposed regulations, in 800.6(b)(1)(ii), also allow any
principal party to request Council involvement in the consultation. If
the Council does not participate in consultation, then the Council does
not review two-party agreements negotiated between the SHPO and the
Federal agency, but the regulations do require Federal agencies to file
copies of the agreement with the Council as a basis for general Council
oversight of agency compliance with Section 106. If the SHPO and the
agency cannot reach a solution, the proposed regulations require that
the Council join the consultation to attempt resolution before allowing
for termination of consultation and the provision of formal comments by
the Council membership. The proposed regulations provide that these
formal Council comments be considered by the head of the agency in
accordance with Section 110(l) of the Act.
Subpart B provides a new section on coordination with the National
Environmental Policy Act (NEPA). It allows for the use of the NEPA
process and documentation for the preparation
[[Page 48582]]
of an environmental impact statement (EIS) and environmental assessment
(EA) to comply with Section 106 procedures as long as the draft EIS or
EA meets certain specific standards. The agency must submit the EA or
draft EIS to the Council, the SHPO, other consulting parties, and the
interested public during the public comment period and any agreed upon
mitigation measures must be incorporated in the record of decision. The
purpose of this section is to encourage the integration of the
resolution of adverse effects on historic properties into agency NEPA
compliance.
The proposed regulations also clarify in Section 800.9 the process
for assessing certain agency findings under Sections 800.4 and 800.5.
Such requests may only be made by the SHPO, another consulting party or
a member of the interested public that has participated in the Section
106 process and must be made before the undertaking is approved by the
agency. The proposed regulations also provide strict time limits for
the Council to act on the request and provide its views to the agency
official. The Council may request the agency official to delay final
action for up to 30 days while the Council considers the matter, but
the agency official is not required to do so.
In shifting the emphasis from Council review of individual cases to
assessing the overall quality of Federal agency or SHPO performance,
the proposed regulations add a provision that requires agencies to
maintain documentation of actions taken in compliance with Section 106
and to provide the Council with such information upon Council request.
Section 800.10 addresses special requirements for National Historic
Landmarks and remains unchanged for the most part.
Documentation standards have been clarified to provide general
requirements regarding adequacy, format and confidentiality in Section
800.11(a)-(c). Sections 800.11(d)-(h) remain largely unchanged from the
current 800.8(a)-(d) except that a new documentation requirement has
been added for a finding of no historic properties present or affected.
In order to comply with the 1992 amendments which mandated
participation of Indian tribes and Native Hawaiian organizations, the
Council added a new section in 800.12 on involving Indian tribes and
Native Hawaiians in the consultation process. This section sets forth
specific requirements for involvement at each step of the Section 106
process and is designed to facilitate participation and agency planning
for involvement.
Section 800.13 changes the Council's current emergency procedures
contained in 800.12 by encouraging agencies to develop internal
procedures, in consultation with the Council and the SHPO, which
address how historic properties will be considered during emergencies.
If an agency has not developed such procedures, the regulations
encourage agencies to develop programmatic agreements that include
provisions for dealing with historic properties during emergencies. If
there is no applicable programmatic agreement, then the agency shall
give the Council seven days to comment prior to the undertaking where
the agency determines circumstances permit.
Section 800.14 is similar to the current Section 800.11 which
addresses post review discoveries except that it adds the requirement
that agencies must make reasonable efforts to avoid or minimize adverse
effects on unplanned-for discoveries.
Subpart C--Program Alternatives
This Subpart provides new options for agencies to pursue in
streamlining their Section 106 compliance activities and incorporates
the current practice of developing Programmatic Agreements to
facilitate coordination between Section 106 and an agency's particular
program.
Section 800.15 provides five alternative methods of fulfilling
Section 106 responsibilities, instead of following the procedures set
forth in Subpart B. First, Section 800.15(a) states that Federal
agencies may develop procedures and, when they are determined to be
consistent with the Council's regulations, substitute them for
comparable portions of the Council's regulations. Second, Section
800.15(b) provides for the development of Programmatic Agreements to
govern particular agency programs or complex or multiple undertakings;
this section is substantively unchanged from the current programmatic
agreement section in 800.13 of the Council's regulations, but does
change minor standards and requirements in the development of such
agreements. Third, Section 800.15(c) allows for agencies to establish
exempted categories for undertakings that have foreseeable effects
which are not likely to be adverse. Fourth, Section 800.15(d) allows
the Council to offer a streamlined method of treating a category of
historic properties or a category of effects by allowing for standard
treatments. Finally, Section 800.15(e) provides an efficient mechanism
for fulfilling the requirement of seeking Council comment. This section
allows agencies to request Council comment on a category of routine or
repetitive undertakings instead of conducting individual reviews.
The Council has reserved Section 800.16 to address state, tribal
and local program alternatives, but has deleted the current Section
800.7 on state agreements.
Section 800.17 contains definitions. Several definitions have been
changed or deleted. ``Agency official'' has been deleted as redundant
in light of Section 800.2(a)(1). ``Approval of the expenditure of
funds'' has been added to clarify the triggering event for many Section
106 reviews. ``Area of potential effects'' has been changed in light of
the removal of the ``effect'' determination step in the process and is
now limited to the area where adverse effects may occur. ``Comment''
and ``consultation'' and ``effect'' have been added for clarification.
``Head of the agency'' has been added as a result of the 1992
amendments. ``Historic properties'' definition has been changed to
include properties of traditional religious and cultural importance to
Indian tribes or Native Hawaiian organizations that meet the National
Register criteria. ``Indian lands'' has been changed to ``tribal
lands'' and redefined as in the statute. ``Indian tribe'' is changed
and tracks the exact language in the statute. ``Interested person'' has
been deleted because that term is no longer used by the regulations.
``Memorandum of Agreement'' has been added for clarification. ``Native
Hawaiian organization'' is added and tracks the statutory language.
``Programmatic Agreement'' has been added for clarification.
``Traditional cultural authority'' has been added because the 1992
amendments refer to the involvement of such groups. ``Tribal
Preservation Officer'' has been added because the 1992 amendments
provide a new role for such an officer. ``Undertaking'' has been
defined exactly as in the statute.
III. Issues Deserving Special Attention From Commenters
1. Public Participation
The goal of the regulatory requirement that Federal agencies inform
and involve the public in the Section 106 process is to ensure that the
public has a reasonable opportunity to provide its views on a project.
The Council has attempted to give the public an adequate chance to
voice its concerns to Federal decision makers while recognizing
legitimate concerns about avoiding
[[Page 48583]]
unnecessary procedural burdens and delays and protecting the privacy of
non-governmental parties involved in the Section 106 process. How can
the regulations be enhanced to provide for meaningful public
involvement in a timely and effective fashion?
2. Local Governments
Several agencies seek an enhanced role for certified local
governments in the Section 106 process and find that the regulations do
not go far enough in providing for their involvement. The definition of
``Head of the agency'' provides that the head of a local government
shall be considered the head of the agency where it has been delegated
responsibility for Section 106 compliance. How can we better
incorporate local governments into the process without confusing the
regulations?
3. Council Involvement
In this proposal, the Council has removed itself from review of no
adverse effect determinations and routine Memoranda of Agreement with
the intent of deferring to agency-SHPO decision making as a general
rule. At the same time, as the Federal agency assigned to review the
policies and programs of Federal agencies on historic preservation
matters, the Council has retained the right to enter the consultative
process on its own motion or when asked requested by the Agency
Official. The regulations set forth in 800.6 several criteria which
indicate when an Agency Official must invite the Council to become
involved in the consultation. They also set a general standard for when
the Council will enter the process without a request. The Council
intends on exercising its right to enter the process sparingly. Are the
criteria set forth in 800.6(a)(1)(i) workable? Can the regulations
better define when the Council will intervene on its own initiative?
4. Council Review of Agency Findings
Section 800.9 provides for Council review of agency findings where
the Council has not participated in the consultative process pursuant
to 800.6. The Council's right to review agency findings is limited to
whether the agency followed the appropriate procedures when making an
eligibility determination under 800.4(c)(2), a no historic properties
present or affected finding under 800.4(d), or a no adverse effect
finding or resolution by standard treatment under 800.5(c). The right
to review is also limited by the requirement that the request be made
prior to the agency approval of the expenditure of funds or the
issuance of a license, permit or other approval. The Council has 10
days to decide if the request warrants Council review and 30 days to
decide the merits of the case. The Council finds that the above review
process strikes a balance between allowing review of procedurally
deficient agency decisions and limiting review to situations that could
not have been corrected earlier in the process. Some Federal agencies
find that the review process in 800.9 provides the Council too much
authority to second guess agency decisions and promotes a lack of
finality to the process. How can the regulations accommodate the
Council's concerns and those of other Federal agencies?
5. Time Frames
Throughout the regulations, time frames are set for reviews
conducted by SHPOs and the Council. Generally, they allow thirty days
for responding to agency requests, although some are shorter. These
have been established in an effort to balance the need for an
expeditious process for Federal agencies and applicants with the
recognition of the need for adequate time to evaluate submissions (as
well as the limits on resources available in SHPO offices and at the
Council to respond within the specified time). Do the time frames
achieve this balance or should specific ones be increased or decreased?
6. Alternate Procedures
The proposed regulations allow Federal agencies to substitute their
own procedures for those contained in subpart B. Section 110(a)(2)(E)
of the Act requires that procedures implementing Section 106, including
these substitute procedures, be consistent with the Council's
regulations. The proposed regulations charge the Secretary with making
final determinations on consistency. This is based on the Secretary's
primary responsibility for implementing Section 110. Alternatively, the
Council, as the agency charged by Section 211 of the Act with issuing
the regulations to guide implementation of Section 106, could make such
a determination. A third option is allowing the Federal agency itself
to make a determination of consistency. Is the proposed approach the
best solution?
IV. Impact Analysis
Regulatory Flexibility Act
The proposed rules will not have a significant economic impact on a
substantial number of small entities. The Council's regulations, in
their current and revised form, only impose mandatory obligations on
Federal agencies. If a Federal agency is legally authorized and chooses
to delegate its responsibility to local governments, then that Federal
agency must determine whether or not its delegation will have a
significant economic impact on a substantial number of small entities.
The Paperwork Reduction Act
The proposed regulations do not impose reporting requirements or
the collection of information as defined in the Paperwork Reduction
Act.
National Environmental Policy Act
Pursuant to 36 CFR Part 805, the Council is developing a draft
Environmental Assessment and will complete the NEPA evaluation prior to
publication of its final rule.
Executive Orders 12866 and 12875
The Council is exempt from compliance with Executive Orders 12866
pursuant to a memorandum issued by the Office of Management and
Budget's Office of Information and Regulatory Affairs on October 12,
1993. The Council is also exempt from the documentation requirements of
Executive Order 12875 pursuant to a memorandum issued by the same
office on January 11, 1994. Although the Council is exempt, it has
adhered to the principles in both orders by involving State, local and
tribal entities, members of the public, and industry groups in the
development of the proposed regulations as discussed above in the
Background section of this preamble. The proposed regulations, like the
current regulations, do not mandate State, local and tribal governments
to participate in the Section 106 process. The State, local and tribal
governments have the option of declining to participate, although the
State Historic Preservation Officers are required to advise and assist
Federal agencies, as appropriate, as part of their duties under Section
101(b)(3)(E) of the National Historic Preservation Act and as a
condition of their Federal grant assistance. In accordance with
Executive Order 12875, the proposed regulations provide flexible
approaches to consideration of historic properties in Federal agency
decision making by allowing for categorical exemptions, standard
treatments, program comments, and programmatic agreements in Section
800.15 of the proposed regulations.
[[Page 48584]]
Unfunded Mandates Reform Act of 1995
The Council has determined that its regulations do not fall within
the definition of a Federal mandate as defined in Section 421(6) of the
Unfunded Mandates Reform Act of 1995.
Executive Order 12898
The regulations implementing Section 106 do not pose environmental
risks, but rather, seek to avoid adverse effects on historic properties
in all areas of the United States.
Memorandum Concerning Government-to-Government Relations with Native
American Tribal Governments
The Council has fully complied with this Memorandum. A Native
American representative served on the Council and was a member of the
Council's Regulations Task Force. The proposed regulations enhance the
opportunity for Native American involvement in the Section 106 process
and clarify the obligation of Federal agencies to consult with Native
Americans.
List of Subjects in 36 CFR Part 800
Administrative practice and procedure, Historic preservation,
Indians, Inter-governmental relations.
Dated: September 10, 1996.
Robert D. Bush,
Executive Director.
Title 36, chapter VIII is amended by revising part 800 to read as
follows:
PART 800--PROTECTION OF HISTORIC AND CULTURAL PROPERTIES
Subpart A--Purposes and Participants
Sec.
800.1 Purposes.
800.2 Participants in the Section 106 process.
Subpart B--Section 106 Procedures
800.3 Initiation of the Section 106 process.
800.4 Identification of historic properties.
800.5 Assessment of adverse effects.
800.6 Resolution of adverse effects.
800.7 Failure to resolve adverse effects.
800.8 Coordination with the National Environmental Policy Act.
800.9 Council review of Section 106 compliance.
800.10 Special requirements for protecting National Historic
Landmarks.
800.11 Documentation standards.
800.12 Consultation with Indian tribes and Native Hawaiian
organizations.
800.13 Emergency situations.
800.14 Post-review discoveries.
Subpart C--Program Alternatives
800.15 Federal agency program alternatives.
800.16 State, Tribal and Local Program Alternatives. (Reserved)
800.17 Definitions.
Subpart A--Purposes and Participants
Sec. 800.1 Purposes.
(a) Purposes of the Section 106 process. Section 106 of the
National Historic Preservation Act requires Federal agencies to take
into account the effects of their undertakings on historic properties
and afford the Council a reasonable opportunity to comment on such
undertakings. The procedures in this part define how Federal agencies
meet these statutory responsibilities. The Section 106 process seeks to
accommodate historic preservation concerns with the needs of Federal
undertakings through consultation between the Agency Official and other
parties with an interest in the effects of the undertaking on historic
properties, commencing at the early stages of project planning. The
goal of consultation is to avoid or minimize adverse effects on
historic properties.
(b) Relation to other provisions of the Act. Section 106 is one of
several provisions of the Act designed to further the national policy
of historic preservation. References to those related provisions are
included in the procedures in this part to identify circumstances where
actions under the procedures in this part may be affected by the
independent obligations of those other provisions. Such provisions may
have their own implementing regulations or guidelines and are not
intended to be implemented by the procedures in this part. Guidelines,
policies and procedures issued by other agencies, including the
Secretary, have been cited in the procedures in this part for ease of
access and are not incorporated by reference.
(c) Methods of complying with section 106 of the Act. The
procedures in this part provide several methods for Federal agencies to
meet their Section 106 responsibilities.
(1) Alternate procedures. Section 110(a)(2)(E) of the Act directs
Federal agencies to develop procedures for implementing section 106 of
the Act that are consistent with the Council's regulations and meet
standards specified in the Act. The Council encourages Federal agencies
to adopt such procedures and, where appropriate, substitute them for
the procedures in subpart B of this part in accordance with
Sec. 800.15(a).
(2) Exemptions and programmatic agreements. If a Federal agency
does not have alternate procedures in place, it should consider the use
of exemptions (Sec. 800.15(c)) and programmatic agreements
(Sec. 800.15(b)) to tailor Section 106 compliance to its program needs.
(3) General procedure. If a Federal agency has not adopted
alternate procedures and the undertaking is not exempted or governed by
a programmatic agreement, the Agency Official shall comply with the
process set forth in subpart B of this part.
(d) Timing. Section 106 of the Act requires the Agency Official to
complete the section 106 process prior to the approval of the
expenditure of funds or prior to the issuance of any license, permit or
other approval. An Agency Official may expend funds on, or authorize,
nondestructive project planning activities, including field
investigations, before completing compliance with section 106 of the
Act, and may conduct phased compliance with the procedures in subpart B
of this part at different stages of planning, provided that such
actions do not restrict the subsequent consideration of alternatives to
avoid or minimize the undertaking's adverse effects on historic
properties. The Agency Official shall ensure that the section 106
process is initiated early in the undertaking's planning, so that a
broad range of alternatives may be considered.
Sec. 800.2 Participants in the section 106 process.
(a) Principal parties. The following parties have statutory
responsibilities in the section 106 process:
(1) Agency Official. It is the legal obligation of the Federal
agency to fulfill the requirements of section 106 of this Act and to
ensure that an Agency Official with jurisdiction over an undertaking
takes legal and financial responsibility for section 106 compliance in
accordance with subpart B of this part. The Agency Official has final
approval authority for the undertaking and may be a State, local, or
tribal government official who has been delegated legal responsibility
for compliance with section 106 of the Act in accordance with law or
agency procedures established under section 110(a)(2)(E) of the Act.
(i) Section 112 of the Act requires each Federal agency to ensure
that all actions taken by employees or contractors of the agency shall
meet professional standards under applicable regulations of the
Secretary and that agency personnel and contractors responsible for
historic resources meet applicable qualification standards
[[Page 48585]]
established by the Office of Personnel Management.
(ii) If more than one Federal agency is involved in an undertaking,
the agencies may designate a lead Federal agency. The lead Federal
agency shall identify the appropriate official to serve as the Agency
Official. Such Agency Official shall act on behalf of all participating
Federal agencies, fulfilling their collective responsibilities under
section 106 of the Act and subpart B of this subpart.
(2) Council. The Council is responsible for issuing regulations to
implement section 106, provides guidance and advice on the application
of the procedures in this part, and generally oversees the operation of
the section 106 process. The Council also consults with and comments to
Agency Officials on undertakings that affect historic properties and
assists participants in meeting their legal obligations. Participants
in the section 106 process may seek advice and guidance from the
Council on the application of this part to specific undertakings even
though the Council is not formally involved in the review of the
undertaking.
(b) Consulting parties. The following parties have consultative
roles in the section 106 process as defined in the Act.
(1) State Historic Preservation Officer. The State Historic
Preservation Officer advises and assists Federal agencies in carrying
out their historic preservation responsibilities and consults with
Federal agencies on undertakings that affect historic properties and on
the content and sufficiency of plans to protect, manage or mitigate
harm to historic properties. If an Indian tribe has assumed the
functions of the State Historic Preservation Officer for the section
106 process on tribal lands, the State Historic Preservation Officer
shall participate in accordance with any plan referenced in
Sec. 800.2(b)(2) and may also participate as a member of the interested
public. The role of the State Historic Preservation Officer with regard
to effects on historic properties located off tribal lands is
unchanged.
(2) Indian tribes and Native Hawaiian organizations. The Agency
Official is required to consult with any Indian tribe or Native
Hawaiian organization that attaches religious and cultural significance
to historic properties that may be affected by an undertaking. To meet
this responsibility, the Agency Official shall identify Indian tribes
and Native Hawaiian organizations likely to have such interests in
accordance with Sec. 800.3(e) and consult with them in accordance with
Sec. 800.12 to ensure that their views are fully considered by the
Agency Official in reaching findings and decisions in the section 106
process. An Indian tribe may assume the functions of a State Historic
Preservation Officer in the section 106 process with respect to tribal
lands under section 101(d)(2) of the Act. If so, the Agency Official
shall consult with the Tribal Preservation Officer in accordance with
the plan prepared pursuant to that section regarding the effects of
undertakings on tribal lands.
(c) Affected parties. The following parties have direct legal or
financial interests in the effects of an undertaking on historic
properties and may participate in the section 106 process as consulting
parties when they so request.
(1) Representatives of local governments. If a representative of a
local government with jurisdiction over the area in which the effects
of an undertaking may occur so requests, the Agency Official shall
involve the local government as a consulting party. Under certain
authorities, the local government may be authorized to act as the
Agency Official for purposes of section 106 of the Act.
(2) Applicants for Federal assistance, permits, licenses and other
approvals. If an applicant for Federal assistance or permission so
requests, the Agency Official shall involve the applicant as a
consulting party. The Agency Official may authorize an applicant to
initiate consultation with the State Historic Preservation Officer and
others under Secs. 800.3 and 800.4, but remains legally responsible for
all findings charged to the Agency Official. Where not inconsistent
with the rights of the public to access the information that is the
basis for the Agency Official's decisions under the procedures in this
part, the Agency Official may take reasonable steps to protect the
privacy of non-governmental applicants in accordance with applicable
agency procedures.
(d) The public. The views of the public are essential to informed
Federal decisionmaking as to taking into account effects of
undertakings. The Act directs Federal agencies to consult with the
interested public, as appropriate, in steps taken to comply with
section 106 of the Act. The procedures in this part provide for
notification and involvement of the public in the section 106 process
and for the identification of and consultation with the interested
public as appropriate.
(1) Responsibilities. The Agency Official is required at specific
points in the section 106 process to provide the public with
information about an undertaking and its effects on historic properties
and to seek public comment and input. Members of the public may also
provide views on their own initiative and the Agency Official should
consider those views in decisionmaking.
(2) Flexible application. The Agency Official's efforts to seek and
consider the views of the public should reflect the nature and
complexity of the undertaking and its effects on historic properties,
the likely interest of the public in the effects on historic
properties, and the nature of the Federal involvement in the
undertaking. Evaluation of these factors for an individual undertaking
may warrant the Agency Official to apply the specific public
involvement requirements of subpart B of this part in a flexible
manner.
(3) Use of agency procedures. The Agency Official may use the
agency's procedures for public involvement under the National
Environmental Policy Act or other program requirements, if they provide
adequate opportunities for public involvement consistent with the
procedures in subpart B of this part.
(4) Interested public. The interested public includes those
individuals and organizations that have indicated to the Agency
Official an interest in the effects of an undertaking on historic
properties. Certain individuals and organizations may warrant direct
involvement in the consultations conducted by the Agency Official due
to the nature of their legal or economic relation to the undertaking or
affected properties, or due to their representation of citizens or
organizations concerned with the undertaking and its effects on
historic properties. The Agency Official is required to take steps to
identify the interested public and involve them at specific points in
the section 106 process. The interested public includes:
(i) Owners of real property affected directly by the undertaking,
provided that the Agency Official may limit participation to
organizations representing such owners if necessary;
(ii) Traditional cultural authorities with an interest in the
undertaking's effects on historic properties of traditional cultural
and religious importance;
(iii) The State Historic Preservation Officer when an Indian tribe
has assumed the functions of the State Historic Preservation Officer
under section 101(d)(2) of the Act; and
(iv) Other individuals, organizations or entities that request to
be treated as members of the interested public.
[[Page 48586]]
Subpart B--Section 106 Procedures
Sec. 800.3 Initiation of the Section 106 process.
(a) Establish undertaking. The Agency Official shall determine
whether the proposed Federal action is an undertaking and, if so,
whether it has the potential to affect historic properties and whether
review is governed by a Federal agency program alternative established
under Sec. 800.15.
(1) If the action is not an undertaking or an undertaking that has
no potential to affect historic properties, the Agency Official has no
further obligations under section 106 of the Act.
(2) If the review of the undertaking is governed by a Federal
agency program alternative, the Agency Official shall follow that
alternative.
(b) Coordinate with other reviews. The Agency Official shall
coordinate the steps of the Section 106 process, as appropriate, with
the overall planning schedule for the undertaking and with any reviews
required under other authorities such as the National Environmental
Policy Act, the Native American Graves Protection and Repatriation Act,
the American Indian Religious Freedom Act, the Archeological Resources
Protection Act and agency specific legislation, such as section 303(f)
of the Department of Transportation Act. Where consistent with the
procedures in this subpart, the Agency Official may use information
developed for other reviews under Federal or State law to meet the
requirements of the section 106 process.
(c) Plan to involve the public. The Agency Official shall begin
planning for involving the public in the Section 106 process, relating
the steps to be taken to the likely level and nature of public interest
in the undertaking and its effects on historic properties. The Agency
Official shall consider what individuals and organizations may have an
interest in the undertaking and its effects on historic properties and
plan to involve them in the Section 106 process as members of the
interested public. The Agency Official should give special attention to
identifying those members of the interested public who should be
consulted as the section 106 process proceeds and involve them as
appropriate.
(d) Initiate consultation with the State Historic Preservation
Officer. The Agency Official shall determine the appropriate State
Historic Preservation Officer or Officers to be involved in the section
106 process and initiate consultation.
(1) If the State Historic Preservation Officer declines in writing
to participate in the Section 106 process or fails to respond in a
timely manner at any point in these procedures, the Agency Official
shall consult with the Council to complete the Section 106 process
without the State Historic Preservation Officer.
(2) If more than one State is involved in an undertaking, the
involved State Historic Preservation Officers may designate a lead
State Historic Preservation Officer to act on behalf of all
participating State Historic Preservation Officers in the Section 106
process.
(3) Requirements for consultation with the State Historic
Preservation Officer should be implemented in a manner appropriate to
the agency planning process for the undertaking and the nature and
effect of the undertaking on historic properties. A single consultation
by the Agency Official with the State Historic Preservation Officer may
address multiple steps in the Section 106 process where it is
consistent with the purposes of the procedures in this part.
(e) Identify consulting parties. The Agency Official shall
determine whether there are any local governments or applicants that
are entitled to be involved in consultations conducted under this
subpart and plan to involve them as appropriate. The Agency Official
shall identify the Indian tribes or Native Hawaiian organizations that
might attach religious and cultural significance to historic properties
in the area of potential effects and plan for their participation in
accordance with Sec. 800.12 .
Sec. 800.4 Identification of historic properties.
(a) Determine scope of identification efforts. At the earliest
feasible stage in planning an undertaking and coordinated with any
steps being taken to meet the requirements of the National
Environmental Policy Act, the Agency Official shall consult with the
State Historic Preservation Officer and:
(1) Determine the area of potential effects;
(2) Review existing information on historic properties within the
area of potential effects, including any data concerning possible
historic properties not yet identified; and
(3) Seek information from individuals and organizations likely to
have knowledge of, or concerns with, historic properties in the area
and identify issues relating to historic properties.
(b) Identify historic properties. Based on the information gathered
under Sec. 800.4(a) and in consultation with the State Historic
Preservation Officer, the Agency Official shall take the steps
necessary to identify historic properties within the area of potential
effects.
(1) Level of effort. The Agency Official, in consultation with the
State Historic Preservation Officer, shall make a reasonable and good
faith effort to carry out appropriate identification efforts. The
Agency Official shall determine the appropriate scope and type of
identification efforts, including background research, consultation,
sample field investigation, and field survey, taking into account past
planning or research studies and results, and based on the magnitude of
the undertaking, the nature and extent of its potential effects on
historic properties and the likely nature and location of historic
properties within the area of potential effects. The Secretary's
Standards and Guidelines for Identification provide guidance on this
subject.
(2) Phased identification. Where alternative locations are under
consideration or access to properties is restricted, the Agency
Official may conduct identification efforts designed to establish the
likely presence of historic properties within the area of potential
effects for each alternative through background research, consultation
and an appropriate level of field investigation, taking into account
the number of alternatives under consideration and the magnitude of the
undertaking and likely effects. As specific aspects or location of a
preferred alternative are determined, the Agency Official shall
complete the identification of historic properties in accordance with
Sec. 800.4(b)(1).
(3) Consistent with applicable conflict of interest laws, the
Agency Official may use the services of applicants, consultants, or
designees to prepare information and analyses under this subpart, but
remains legally responsible for all findings charged to the Agency
Official. If a document or study is prepared by a non-Federal party,
the Agency Official shall evaluate the document prior to its approval
and be responsible for its content.
(c) Evaluate historic significance. (1) Apply National Register
Criteria. In consultation with the State Historic Preservation Officer,
guided by the Secretary's Standards and Guidelines for Evaluation and
with consideration for the potential of the proposed undertaking to
affect identified properties, the Agency Official shall apply the
National Register Criteria to properties identified within the area of
potential effects that have not been previously evaluated for National
Register eligibility. The passage of time, changing perceptions of
significance, or
[[Page 48587]]
incomplete prior evaluations may require reevaluation of properties
previously determined eligible or ineligible.
(2) Determine whether a property is eligible. If the Agency
Official determines the criteria are met and the State Historic
Preservation Officer agrees, the property shall be considered eligible
for the National Register for Section 106 purposes. If the Agency
Official determines the criteria are not met and the State Historic
Preservation Officer agrees, the property shall be considered not
eligible. If the Agency Official and the State Historic Preservation
Officer do not agree, or if the Council or the Secretary so request,
the Agency Official shall obtain a determination of eligibility from
the Secretary pursuant to 36 CFR part 63.
(d) Results of identification and evaluation. (1) No historic
properties present or affected. If the Agency Official finds that there
are no historic properties either present or that may be affected by
the undertaking, the Agency Official shall provide documentation of
this finding as set forth in Sec. 800.11(d) to the State Historic
Preservation Officer. The Agency Official shall notify any consulting
party and the interested public and make the documentation available
for public inspection prior to approving the undertaking. If the State
Historic Preservation Officer does not object within 15 days of receipt
of an adequately documented finding, this completes the Agency
Official's responsibilities under section 106 of the Act.
(2) Historic properties affected. If there are historic properties
that may be affected by the undertaking, the Agency Official shall
notify any consulting party and the interested public and assess
adverse effects in accordance with Sec. 800.5.
Sec. 800.5 Assessment of adverse effects.
(a) Apply criteria of adverse effect. In consultation with the
State Historic Preservation Officer, the Agency Official shall apply
the criteria of adverse effect to historic properties within the area
of potential effects. The Agency Official shall consider any views
concerning such effects provided by consulting parties, the interested
public and the public at large.
(1) Criteria of adverse effect. An undertaking is considered to
have an adverse effect when it may alter the characteristics of a
historic property that qualify the property for inclusion in the
National Register in a manner that would diminish the integrity of the
property's location, design, setting, materials, workmanship, feeling,
or association. Adverse effects may include reasonably foreseeable
effects caused by the undertaking that are later in time or farther
removed in distance.
(2) Examples of adverse effects. Adverse effects on historic
properties include, but are not limited to:
(i) Physical destruction, damage, or alteration of all or part of
the property;
(ii) Removal of the property from its historic location;
(iii) Alteration of the character of the property's setting or use
when that character contributes to the property's qualification for the
National Register;
(iv) Introduction of visual or audible elements that are out of
character with the property ;
(v) Neglect of a property which causes its deterioration; and
(vi) Transfer, lease, or sale of property out of Federal ownership
or control.
(3) Avoidance of adverse effects. The Agency Official, in
consultation with the State Historic Preservation Officer, may make a
finding of no adverse effect when the Agency Official modifies the
undertaking to avoid adverse effects.
(4) Standard treatment of potential adverse effects. The Agency
Official may find, in consultation with the State Historic Preservation
Officer, that certain adverse effects are satisfactorily resolved in
accordance with one of the following standard treatments:
(i) The undertaking is limited to maintenance, repair,
rehabilitation, or restoration of buildings or structures, including
hazardous materials remediation or modifications for handicapped
access, and will be conducted in accordance with construction plans and
specifications that meet the Secretary's Standards for the Treatment of
Historic Properties and applicable guidelines and that are reviewed by
the State Historic Preservation Officer prior to implementation;
(ii) The undertaking is limited to construction or ground
disturbance that would destroy, damage or alter an archaeological
property of value only for its contribution to knowledge of the past,
and a plan for studying the property with archeological methods,
collecting important information, and disseminating the results to the
public, or a plan for preserving the property for future study is
prepared and implemented in accordance with applicable professional
standards and guidelines;
(iii) The undertaking is limited to the transfer, sale or lease of
a Federal historic property and adequate and legally enforceable
restrictions or conditions are included to ensure preservation of the
property's significant historic features;
(iv) The undertaking is limited to the rehabilitation or
replacement of a bridge and, in accordance with a State inventory and
plan for historic bridges approved by the State Historic Preservation
Officer, specific measures are provided for recordation and marketing,
relocation or reuse of the bridge; or
(v) The undertaking meets another standard treatment specified by
the Council under Sec. 800.15(d).
(b) State Historic Preservation Officer review. If the Agency
Official makes either a finding of no adverse effect or that adverse
effects can be satisfactorily resolved by a standard treatment, the
Agency Official shall submit the finding with the documentation
specified in Sec. 800.11(e) to the State Historic Preservation Officer
for a 30-day review period.
(1) Agreement with finding. If the State Historic Preservation
Officer agrees with the Agency Official's finding, the Agency Official
may proceed and shall carry out the undertaking in accordance with
Sec. 800.5(c)(1).
(2) Disagreement with finding. If the State Historic Preservation
Officer disagrees within 30 days of receipt of the finding, the Agency
Official shall consider the effect adverse. The State Historic
Preservation Officer shall specify the reasons for disagreeing with the
finding. The Agency Official may request the Council to review the
disagreement and shall proceed in accordance with the Council's opinion
as to whether the effect is adverse.
(c) Results of assessment. (1) Finding of no adverse effect or
resolution by standard treatment. The Agency Official shall maintain a
record of the finding, notify any participating local government or
applicant and the interested public, and make the record available for
public review before approving the undertaking. Implementation of the
undertaking in accordance with the finding as documented completes the
Agency Official responsibilities under Section 106 of the Act. If the
Agency Official fails to carry out the undertaking in accordance with
the finding, the Agency Official shall follow Sec. 800.6.
(2) Adverse effect found. If an adverse effect is found and not
resolved by a standard resolution in accordance with this section, the
Agency Official shall consult further to resolve the adverse effect
pursuant to Sec. 800.6.
[[Page 48588]]
Sec. 800.6 Resolution of adverse effects.
(a) Continue consultation. The Agency Official shall consult with
the State Historic Preservation Officer to develop and evaluate
alternatives or modifications to the undertaking to avoid or minimize
adverse effects on historic properties.
(1) Determine Council involvement. The Agency Official shall
determine whether to request Council involvement in the consultation
and notify the Council by providing the documentation specified in
Sec. 800.11(f).
(i) The Agency Official shall request the Council to become
involved in the consultation in accordance with Sec. 800.6(b)(2):
(A) When the Agency Official determines that Council involvement
will facilitate resolution of adverse effects;
(B) When the undertaking has an adverse effect upon a National
Historic Landmark or is to be carried out on tribal lands;
(C) When a Programmatic Agreement under Sec. 800.15(b) is prepared;
or
(D) When the State Historic Preservation Officer, an Indian Tribe,
a Native Hawaiian organization, a local government or an applicant
requests Council involvement.
(ii) The Council shall advise the Agency Official of its decision
to participate within 15 days of receipt of notice. The Council may
enter the consultation on its own initiative when it determines that
Council involvement is necessary to ensure that the purposes of section
106 and the Act are met.
(iii) If the criteria in Sec. 800.6(a)(1)(i) are not met or the
Council does not elect to join the consultation, the Agency Official
may complete consultation in accordance with Sec. 800.6(b)(1).
(2) Involve consulting parties and the interested public. The
Agency Official shall involve consulting parties in the consultation as
determined under Sec. 800.3. When agreed to by the Agency Official, the
State Historic Preservation Officer and the Council, if participating,
members of the interested public may become consulting parties. If the
Agency Official and the State Historic Preservation Officer do not
agree, the Agency Official shall request the Council to decide. The
Agency Official shall involve any member of the interested public that
will assume a specific role or responsibility in a Memorandum of
Agreement.
(3) Provide documentation. The Agency Official shall make available
to the State Historic Preservation Officer and other consulting parties
the documentation specified in Sec. 800.11(f) and such other
documentation as may be developed during the consultation to resolve
adverse effects.
(4) Involve the public. The Agency Official shall make available
information to the public and provide an opportunity for members of the
public to express their views on resolving adverse effects of the
undertaking. The Agency Official shall use appropriate mechanisms,
taking into account the magnitude of the undertaking and the nature of
its effects upon historic properties, to ensure that the full range of
the public's views is represented in the consultation.
(b) Resolve adverse effects. (1) Resolution without the Council.
(i) The Agency Official shall consult with the State Historic
Preservation Officer and other consulting parties to seek ways to avoid
or minimize the adverse effects.
(ii) If during the consultation the Council decides to join the
consultation, the Agency Official shall continue the consultation in
accordance with Sec. 800.6(b)(2).
(iii) If the Agency Official and the State Historic Preservation
Officer agree on how the adverse effects will be resolved, they shall
execute a Memorandum of Agreement. The Agency Official shall file a
copy of the executed Memorandum of Agreement with the Council prior to
approving the undertaking.
(iv) If the Agency Official and the State Historic Preservation
Officer fail to agree on the terms of a Memorandum of Agreement, the
Agency Official shall request the Council to join the consultation and
proceed in accordance with Sec. 800.6(b)(2).
(2) Resolution with Council participation. If the Council decides
to participate, the Agency Official shall consult with the State
Historic Preservation Officer, the Council, and other consulting
parties to avoid or minimize the adverse effects. If the Agency
Official, the State Historic Preservation Officer, and the Council
agree on how the adverse effects will be resolved, they shall execute a
Memorandum of Agreement.
(c) Memorandum of Agreement. (1) Signatories. The Agency Official
and the State Historic Preservation Officer are the signatories to a
Memorandum of Agreement executed pursuant to Sec. 800.6(b)(1). The
Agency Official, the State Historic Preservation Officer, and the
Council are the signatories to a Memorandum of Agreement executed
pursuant to Sec. 800.6(b)(2). The signatories have sole authority to
execute, amend or terminate the agreement.
(2) Concurrence by others. The signatories may agree to invite
others to concur in the Memorandum of Agreement. The Agency Official
shall invite any consulting parties to concur.
(3) Reports on implementation. Where the signatories agree it is
appropriate, a Memorandum of Agreement shall include a provision for
monitoring and reporting on its implementation.
(4) Duration. A Memorandum of Agreement shall include provisions
for termination and for reconsideration of terms if the undertaking has
not been implemented within a specified time.
(5) Legal status. A Memorandum of Agreement executed pursuant to
this section evidences the Agency Official's compliance with Section
106 and this part and shall govern the undertaking and all of its
parts. The Agency Official shall ensure that the undertaking is carried
out in accordance with the Memorandum of Agreement.
(6) Amendments. The signatories to a Memorandum of Agreement may
amend it. If the Council was not a signatory to the original agreement
and the signatories execute an amended agreement, the Agency Official
shall file it with the Council. Failure to agree on amendments leaves
the existing agreement in effect.
(7) Termination. If any signatory determines that the terms of a
Memorandum of Agreement cannot be carried out, the signatories shall
consult to seek amendment of the agreement. If the agreement is not
amended, the Agency Official, the State Historic Preservation Officer,
or the Council if a signatory, may terminate it and the Agency Official
shall request the comments of the Council under Sec. 800.7(b).
Sec. 800.7 Failure to resolve adverse effects.
(a) Termination of consultation. After consulting to resolve
adverse effects pursuant to Sec. 800.6(b)(2), the Agency Official, the
State Historic Preservation Officer, or the Council may determine that
further consultation will not be productive and terminate consultation.
(1) If the Agency Official terminates consultation, the head of the
agency or an Assistant Secretary or other officer with major
department-wide or agency-wide responsibilities shall request the
Council's comments, accompanied by the documentation in Sec. 800.11(h),
and notify the State Historic Preservation Officer, other consulting
parties and the interested public of the request.
(2) If the State Historic Preservation Officer terminates
consultation, the Agency Official and the Council may execute a
Memorandum of Agreement without the State Historic Preservation
Officer's involvement or either may terminate consultation.
[[Page 48589]]
(3) If the Council terminates consultation, the Council shall
notify the Agency Official, the State Historic Preservation Officer,
other consulting parties, and the interested public of the termination
and comment under Sec. 800.7(b).
(b) Comments by the Council. (1) Preparation. The Council shall
prepare its comments with an adequate opportunity for the Agency
Official, the State Historic Preservation Officer, other consulting
parties, and the public to provide their views. Upon request of the
Council, the Agency Official shall provide additional existing
information concerning the undertaking and assist the Council in
arranging an onsite inspection and an opportunity for public
participation.
(2) Timing. The Council shall transmit its comments within 45 days
of receipt of a request under Sec. 800.7(a)(1) or termination by the
Council under Sec. 800.7(a)(3), unless otherwise agreed to by the
Agency Official.
(3) Transmittal. The Council shall provide its comments to the head
of the agency requesting comment with copies to the Agency Official,
the State Historic Preservation Officer, other consulting parties, the
interested public, and others as appropriate.
(4) Response to Council comment. The head of the agency shall
consider the Council's comments in reaching a final decision on the
undertaking. The head of the agency may not delegate his or her
responsibilities pursuant to this paragraph. The head of the agency
shall document the decision by:
(i) Preparing a record of the decision and the rationale for the
decision, evidencing consideration of the Council's comments and
providing it to the Council prior to approving the undertaking;
(ii) Providing a copy of the record of decision to the State
Historic Preservation Officer, other consulting parties, and the
interested public; and
(iii) Notifying the public and making the record available for
public inspection.
Sec. 800.8 Coordination with the National Environmental Policy Act.
(a) General coordination. Federal agencies are encouraged to
coordinate compliance with section 106 of the Act and the procedures in
this part with any steps taken to meet the requirements of the National
Environmental Policy Act (42 U.S.C. 4231 et seq.)(NEPA).
(b) Actions categorically excluded under NEPA. If a project,
activity or program is categorically excluded from NEPA review under an
agency's NEPA procedures, the Agency Official shall determine if it
qualifies as an undertaking requiring review under section 106 of the
Act pursuant to Sec. 800.3(a). If so, the Agency Official shall comply
with the procedures in this subpart.
(c) Use of the NEPA process for section 106 of the Act purposes. An
Agency Official may use the process and documentation for the
preparation of an Environmental Impact Statement or an Environmental
Assessment (EA) to comply with section 106 of the Act in lieu of the
procedures set forth in Secs. 800.3 through 800.6 if the following
conditions are met.
(1) Preparation of the Draft Environmental Impact Statement (DEIS)
or EA meets the following standards:
(i) The Agency Official has notified the Council, the State
Historic Preservation Officer and the interested public during the
preparation of the DEIS or EA that this section is being used to comply
with section 106 of the Act;
(ii) Historic properties are identified and effects of the
undertaking are evaluated in a manner consistent with the criteria and
procedures of Secs. 800.3 through 800.5 and the documentation standards
of Sec. 800.11;
(iii) The Agency Official has consulted with the State Historic
Preservation Officer, other consulting parties, and the Council where
appropriate as required by Secs. 800.3 through 800.6 and Sec. 800.12
when identifying historic properties, evaluating potential adverse
effects, and considering measures to avoid or minimize adverse effects;
(iv) The Agency Official has involved the interested public and the
public in accordance with the agency's NEPA procedures; and
(v) Alternatives and measures that would avoid or minimize any
adverse effects of the undertaking on historic properties are described
in the DEIS or EA.
(2) The Agency Official shall submit the DEIS or EA to the Council,
the State Historic Preservation Officer, other consulting parties, and
the interested public when circulating it for public comment. The
Agency Official shall indicate that the DEIS or EA is intended to meet
the requirements of section 106 of the Act under this section.
(3) If within the time allowed for public comment on the DEIS or EA
the Council objects to how the Agency Official has taken into account
the effects of the undertaking on historic properties, the Agency
Official shall comply with Sec. 800.6(b)(2). If the Agency Official
receives an objection from the State Historic Preservation Officer, a
consulting party, or a member of the interested public within the time
allowed for public comment on the document, the Agency Official shall
provide the objection to the Council. Within 30 days, the Council shall
notify the Agency Official either that it agrees with the objection, in
which case the Agency Official shall comply with Sec. 800.6(b)(2), or
that it disagrees with the objection, in which case the Agency Official
shall continue to follow this section.
(4) The Agency Official shall incorporate into the Final
Environmental Impact Statement (FEIS) or final document resulting from
the EA measures to avoid or minimize adverse effects on historic
properties. Adoption of the proposed measures through a commitment,
binding on the agency or the applicant for Federal assistance or
permission, as appropriate, to carry them out and embodied in a Record
of Decision (ROD) following or accompanying the FEIS or final document
resulting from the EA satisfies the Agency Official's responsibilities
under section 106 of the Act and the procedures in this part.
(5) If the undertaking is subsequently modified in a manner that
alters the treatment of effects on historic properties or if the Agency
Official fails to carry out the measures to avoid or minimize adverse
effects as specified in the ROD, the Agency Official shall notify the
State Historic Preservation Officer, any other consulting party, and
the interested public and consult with the Council. The Council may
either require the Agency Official to follow Sec. 800.6 or provide
comments to the Agency Official within 30 days of the request for
consultation.
Sec. 800.9 Council review of section 106 of the Act compliance.
(a) Assessment of Agency Official findings for individual
undertakings. (1) Basis for request. If the Council has not
participated in the review of an undertaking under the procedures in
this subpart, a State Historic Preservation Officer, a consulting party
or a member of the interested public that has participated in the
section 106 of the Act process may request the Council to assess
whether an Agency Official has complied with the procedures in this
subpart when making a determination whether a property is eligible for
the National Register under Sec. 800.4(c)(2), a finding that there are
no historic properties present or affected under Sec. 800.4(d), or a
finding of no adverse effect or resolution by standard treatment under
Sec. 800.5(c). The request shall be in writing, state specific reasons
[[Page 48590]]
why the finding is not consistent with the provisions of the procedures
in this subpart and include such documentation as the requestor may
have available to support the request.
(2) Timing. The request must be made prior to the approval of the
expenditure of funds or the issuance of any license, permit or other
approval by the Agency Official.
(3) Council review of the finding. (i) The Council shall decide
within 10 days of receipt of the request whether it states reasons
that, if true, would warrant the Council determining that the finding
was inconsistent with the procedures in this subpart.
(ii) If the Council decides that the request states reasons which
would warrant the Council determining that the finding was inconsistent
with the procedures in this subpart, the Council shall review the
finding on its merits. The Council shall notify the Agency Official,
provide a copy of the request and any accompanying supporting
documentation and invite the views of the Agency Official on the merits
of the request. The Council shall complete its assessment of the
finding within 30 days of notifying the Agency Official and may request
the Agency Official to refrain from taking final action on the
undertaking during that period. The Council shall provide its views to
the requestor, the Agency Official, the State Historic Preservation
Officer, consulting parties and other members of the interested public,
as appropriate.
(iii) If the Council decides that the request does not state
reasons that would warrant the Council determining that the finding was
inconsistent with these procedures, the Council shall decline to assess
the finding and notify the requestor.
(4) Questions of eligibility. When the finding concerns the
eligibility of a property for the National Register, the Council shall
refer the matter to the Secretary.
(b) Agency foreclosure of the Council's opportunity to comment.
Where an Agency Official has failed to complete the requirements of
section 106 of the Act in accordance with the procedures in this part
prior to the approval of an undertaking, the Council's opportunity to
comment may be foreclosed. The Council may review a case to determine
whether a foreclosure has occurred. The Council shall notify the Agency
Official and allow 30 days for the Agency Official to provide
information as to whether foreclosure has occurred. If the Council
determines foreclosure has occurred, the Chairman of the Council shall
transmit the determination to the head of the agency.
(c) Intentional adverse effects by applicants. (1) Agency
responsibility. Section 110(k) of the Act prohibits a Federal agency
from granting a loan, loan guarantee, permit, license or other
assistance to an applicant who, with intent to avoid the requirements
of section 106 of the Act, has intentionally significantly adversely
affected a historic property to which the grant would relate, or having
legal power to prevent it, has allowed such significant adverse effect
to occur, unless the agency, after consultation with the Council,
determines that circumstances justify granting such assistance despite
the adverse effect created or permitted by the applicant. Guidance
issued by the Secretary pursuant to Section 110 of the Act governs its
implementation.
(2) Compliance with section 106 of the Act. If an Agency Official,
after consulting with the Council, determines to grant the assistance,
the Agency Official shall comply with the procedures in this subpart to
take into account the effects of the undertaking on any other historic
properties.
(d) Evaluation of Section 106 operations. The Council shall
evaluate the operation of the Section 106 process by periodic reviews
of how participants have fulfilled their legal responsibilities and how
effectively the outcomes reached advance the purposes of the Act.
(1) Information from participants. Section 203 of the Act
authorizes the Council to obtain information from Federal agencies
necessary to conduct oversight and evaluation of the Section 106
process. The Agency Official shall maintain documentation of actions
taken to comply with section 106 of the Act that meet the standards of
Sec. 800.11 and applicable agency procedures. The Agency Official shall
make such documentation available to the Council upon request. The
Council may request available information and documentation from other
participants in the Section 106 process.
(2) Peer review. The Council may use professional peer review to
assist in any evaluation.
(3) Improving the operation of section 106 of the Act. Based upon
any evaluation of the Section 106 process, the Council may make
recommendations to participants, the heads of Federal agencies, and the
Secretary of actions to improve the efficiency and effectiveness of the
process. Where the Council determines that an Agency Official, a State
Historic Preservation Officer or a Tribal Preservation Officer who has
assumed the role of the State Historic Preservation Officer has failed
to properly carry out the responsibilities assigned under the
procedures in this part, the Council may participate in individual case
reviews in a manner and for a period that it determines is necessary to
improve performance or correct deficiencies.
Sec. 800.10 Special requirements for protecting National Historic
Landmarks.
(a) Agency official's responsibilities. Section 110(f) of the Act
requires that the Agency Official, to the maximum extent possible,
undertake such planning and actions as may be necessary to minimize
harm to any National Historic Landmark that may be directly and
adversely affected by an undertaking. When commenting on such
undertakings, the Council shall use the process set forth in
Secs. 800.6 through 800.7 and give special consideration to protecting
National Historic Landmarks in accordance with this section.
(b) Resolution of adverse effects. Any consultation to resolve
adverse effects conducted under Sec. 800.6 shall include the Council,
if the Council chooses to participate.
(c) Involvement of the Secretary. The Agency Official shall notify
the Secretary of consultations involving National Historic Landmarks
and invite the Secretary to participate in the consultation. The
Council may request a report from the Secretary under Section 213 of
the Act to assist in the consultation.
(d) Report of outcome. The Council shall report the outcome of the
Section 106 process, including its comments or any Memoranda of
Agreement, to the Secretary and the head of the agency responsible for
the undertaking.
Sec. 800.11 Documentation standards.
(a) Adequacy of documentation. The Agency Official shall ensure
that any determination, finding or agreement under the procedures in
this subpart is supported by sufficient documentation to enable
reviewing parties to understand its factual and logical basis. If the
Council, or the State Historic Preservation Officer in those situations
where the Council is not involved, determines the applicable
documentation standards are not met, the time period specified in the
relevant section of this subpart shall be suspended until adequate
documentation is submitted.
(b) Format. The Agency Official may use documentation prepared to
meet the needs of other authorities to fulfill the requirements of the
procedures in this subpart, provided that resulting
[[Page 48591]]
documentation meets the standards of this section.
(c) Confidentiality. Section 304 of the Act requires an Agency
Official to withhold from public disclosure information about the
location, character, or ownership of a historic property when
disclosure may cause a significant invasion of privacy, risk harm to
the historic resource, or impede the use of a traditional religious
site by practitioners.
(d) Finding of no historic properties present or affected.
Documentation shall include:
(1) A description of the undertaking and its area of potential
effects, including photographs, maps, and drawings, as necessary;
(2) A description of the efforts used to identify historic
properties; and
(3) The basis for determining that no historic properties are
present or affected.
(e) Finding of no adverse effect or standard treatment of potential
adverse effects. Documentation shall include:
(1) A description of the undertaking and its area of potential
effects, including photographs, maps, and drawings, as necessary;
(2) A description of historic properties that may be affected by
the undertaking, including appropriate information on the nature of
their significance;
(3) A description of the efforts used to identify historic
properties;
(4) A description of why the criteria of adverse effect were found
inapplicable, or how potential adverse effects would be resolved; and
(5) Any views provided by consulting parties, the interested public
and the public.
(f) Finding of adverse effect. Documentation shall include:
(1) A description of the undertaking and its area of potential
effects, including photographs, maps, and drawings, as necessary;
(2) A description of the affected historic properties, with
information on the characteristics that qualify them for the National
Register; and
(3) A description of the undertaking's adverse effects on historic
properties.
(g) Memorandum of Agreement. When a memorandum is filed with the
Council , the documentation shall include an evaluation of any measures
considered to avoid or minimize the undertaking's adverse effects and a
summary of the views of consulting parties, the interested public and
the public.
(h) Requests for comment when consultation is terminated.
Documentation shall include that specified in paragraph (f) of this
section and:
(1) A description and evaluation of any alternatives or mitigation
measures that the Agency Official proposes to resolve the undertaking's
adverse effects;
(2) A description of any reasonable alternatives or mitigation
measures that were considered but not chosen, and the reasons for their
rejection;
(3) The planning schedule for the undertaking; and
(4) Copies or summaries of any views submitted to the Agency
Official concerning the effects of the undertaking on historic
properties and alternatives to reduce or avoid those effects.
Sec. 800.12 Consultation with Indian tribes and Native Hawaiian
organizations.
(a) Objectives. Consultation shall be designed to:
(1) Provide the Indian tribe or Native Hawaiian organization a
reasonable opportunity to identify its concerns about historic
properties, advise on the identification of historic properties,
including associated traditional religious and cultural importance, and
articulate its views on the undertaking's effects on such properties.
(2) Involve designated representatives of the Indian tribe's or
Native Hawaiian organization's governing body and those traditional
cultural authorities and other tribal or organizational members
identified by the designated representatives.
(3) Commence early in the planning process, in order to identify
relevant preservation issues and resolve concerns about the
confidentiality of information on historic properties and to allow
adequate time for discussion of relevant preservation issues. Upon
request, the Agency Official, after consultation with the Secretary,
shall withhold information about historic properties in accordance with
section 304 of the Act.
(b) Undertakings on tribal lands. Consultation with Indian tribes
on tribal lands requires special consideration, as set forth in this
paragraph, of the sovereignty of Indian tribes over such lands. Where
an Indian tribe has not assumed the responsibilities of the State
Historic Preservation Officer under section 101(d)(2) of the Act, the
Agency Official shall involve the Indian tribe with jurisdiction over
the tribal lands as a consulting party in accordance with this
subsection.
(1) Identification of historic properties. When carrying out the
provisions of Sec. 800.4, the Agency Official shall consult with the
Indian tribe when determining the area of potential effects, locating
historic properties and evaluating the historic significance of
identified properties. The Indian tribe shall be consulted when
reaching any determination of eligibility under Sec. 800.4(c)(2) and
its timely objection to an Agency Official's determination shall
require the Agency Official to obtain a determination of eligibility
from the Secretary pursuant to 36 CFR part 63. The Agency Official
shall provide documentation of any finding that there are no historic
properties present or affected to the Indian tribe. If the Indian tribe
objects within 15 days of receipt of an adequately documented finding,
the Agency Official shall consider that historic properties are
affected by the undertaking.
(2) Assessment of adverse effects. When carrying out the provisions
of Sec. 800.5, the Agency Official shall consult with the Indian tribe
when applying the criteria of adverse effect to historic properties
within the area of potential effects, making findings of avoidance of
adverse effect and determining satisfactory resolution of adverse
effects. The Agency Official shall provide a copy of any findings of no
adverse effect or that adverse effects have been satisfactorily
resolved by a standard treatment to the Indian tribe when submitting
them to the State Historic Preservation Officer for review. If the
Indian tribe objects to the finding within 30 days of receipt and
specifies the reasons for disagreeing, the effect shall be considered
adverse, provided that the Agency Official may request the Council to
review the disagreement and proceed in accordance with the Council's
opinion as to whether the effect is adverse.
(3) Resolution of adverse effects. When carrying out the
responsibilities of Sec. 800.6, the Agency Official shall consult with
the Indian tribe along with the State Historic Preservation Officer
when determining participants in the consultation and resolving adverse
effects. The Indian tribe shall be a signatory to any agreement reached
under Sec. 800.6.
(4) Failure to resolve adverse effects. When an Agency Official
follows the provisions of Sec. 800.7, the Indian tribe shall have the
same opportunities to terminate consultation and participate in the
Council comment process as the State Historic Preservation Officer.
(c) Undertakings not on tribal lands. Where the Agency Official has
identified an Indian tribe or Native Hawaiian organization that
attaches religious or cultural significance to historic properties
within the area of potential effects under Sec. 800.3(e), including one
that does not reside in the
[[Page 48592]]
vicinity of the undertaking, the Agency Official shall involve them in
accordance with this paragraph.
(1) Identification of historic properties. When carrying out the
provisions of Sec. 800.4, the Agency Official shall consult with the
Indian tribe or Native Hawaiian organization when determining the area
of potential effects, locating historic properties that may possess
religious or cultural significance and applying the National Register
Criteria to such properties when identified.
(2) Assessment of adverse effects. When carrying out the provisions
of Sec. 800.5, the Agency Official shall consult with the Indian tribe
or Native Hawaiian organization when applying the criteria of adverse
effect to historic properties that may possess religious or cultural
significance within the area of potential effects, making findings of
avoidance of adverse effect to such properties and determining
satisfactory treatment of adverse effects to such properties.
(3) Resolution of adverse effects. When carrying out the
responsibilities of Sec. 800.6, the Agency Official shall consult with
the Indian tribe or Native Hawaiian organization when determining
Council involvement and resolving adverse effects with or without the
Council. The governing body of the Indian tribe or Native Hawaiian
organization shall be invited to concur in any Memorandum of Agreement
reached when it concerns properties that possess religious or cultural
significance.
(4) Failure to resolve adverse effects. When the Agency Official
follows the provisions of Sec. 800.7, the Indian tribe or Native
Hawaiian organization shall have the same opportunities to provide
views and receive information in the Council comment process as the
State Historic Preservation Officer.
(d) Emergency situations and post-review discoveries. (1) Tribal
lands. When an agency complies with the provisions of Sec. 800.13 or
Sec. 800.14 for an undertaking on tribal lands, the Indian tribe shall
have the same opportunities to participate as the State Historic
Preservation Officer. The Agency Official shall also coordinate
requirements under Sec. 800.13 or Sec. 800.14 with any applicable
actions taken to meet the requirements of the Native American Graves
Protection and Repatriation Act.
(2) Non-tribal lands. Where the Agency Official has identified an
Indian tribe or Native Hawaiian organization that attaches religious or
cultural significance to historic properties within the area of
potential effects under Sec. 800.3(e) and subsequently complies with
the provisions of Sec. 800.13 or Sec. 800.14, the Agency Official shall
consult with them in carrying out the provisions of those sections.
Sec. 800.13 Emergency situations.
(a) Agency procedures. The Agency Official, in consultation with
the appropriate State Historic Preservation Officer or Officers and the
Council, is encouraged to develop procedures for taking historic
properties into account during operations which respond to a disaster
or emergency declared by the President, the Agency Official or the
governor of a State or which respond to other immediate threats to life
or property. If approved by the Council, the procedures shall govern
the agency's historic preservation responsibilities during any disaster
or emergency in lieu of Secs. 800.3 through 800.7.
(b) Alternatives to agency procedures. In the event an Agency
Official proposes an emergency undertaking as an essential and
immediate response to a disaster or emergency declared by the
President, the Agency Official or the governor of a State, and the
agency has not developed procedures pursuant to Sec. 800.13(a), the
Agency Official may comply with section 106 of the Act by:
(1) Following a programmatic agreement developed pursuant to
Sec. 800.15(b) that contains specific provisions for dealing with
historic properties in emergency situations; or
(2) Notifying the Council and the appropriate State Historic
Preservation Officer prior to the undertaking and affording them an
opportunity to comment within seven days of notification. If the Agency
Official determines that circumstances do not permit seven days for
comment, the Agency Official shall notify the Council and the State
Historic Preservation Officer and invite any comments.
(c) Local governments responsible for Section 106 compliance. When
a local government is statutorily delegated responsibility for Section
106 compliance, Sec. 800.13 (a) and (b) also apply to an imminent
threat to public health or safety as a result of a natural disaster or
emergency declared by a local government's chief executive officer or
legislative body, provided that if the Council or State Historic
Preservation Officer objects within seven days, the Agency Official
shall comply with Secs. 800.3 through 800.7.
(d) Applicability. This section applies only to undertakings that
will be implemented within 30 days after the disaster or emergency has
been formally declared by the appropriate authority. An agency may
request an extension of the period of applicability from the Council
prior to the expiration of the 30 days. Immediate rescue and salvage
operations conducted to preserve life or property are exempt from the
provisions of section 106 of the Act and this subpart.
Sec. 800.14 Post-review discoveries.
(a) Planning for discoveries. When the Agency Official's
identification efforts in accordance with Sec. 800.4 indicate that
historic properties are likely to be discovered during implementation
of an undertaking, the Agency Official shall include in any finding of
no adverse effect, standard treatment of potential adverse effects or
Memorandum of Agreement a process to resolve any adverse effects upon
such properties. Actions in conformance with the process satisfy the
Agency Official's responsibilities under section 106 of the Act and
this subpart.
(b) Unplanned for discoveries. If historic properties are
discovered or unanticipated effects on historic properties found after
the Agency Official has completed the Section 106 process without
establishing a process under Sec. 800.14(a), the Agency Official shall
make reasonable efforts to avoid or minimize adverse effects to such
properties and:
(1) If the Agency Official has not approved the undertaking,
consult to resolve adverse effects pursuant to Sec. 800.6;
(2) If the Agency Official determines in consultation with the
State Historic Preservation Officer that the affected property is
significant solely for its scientific, prehistoric, historic or
archeological data, comply with the Archeological and Historic
Preservation Act, 16 U.S.C. 469 (a)-(c) instead of the procedures in
this part, provided that the Agency Official shall consult with the
State Historic Preservation Officer on the actions proposed and provide
the Council with a report on the actions after they are completed; or
(3) If the Agency Official has approved the undertaking, the Agency
Official shall:
(i) Determine actions that the Agency Official can take to resolve
adverse effects;
(ii) Notify the State Historic Preservation Officer and the Council
within 48 hours of the discovery;
(iii) Describe the actions proposed to resolve the adverse effects;
(iv) Take into account any recommendations provided by the Council
and the State Historic Preservation Officer within 48 hours of the
notification.
(v) Carry out appropriate actions; and
[[Page 48593]]
(vi) Provide the Council, the State Historic Preservation Officer
and the interested public a report of the actions when completed.
(c) Eligibility of properties. When a newly discovered historic
property has not previously been included in or determined eligible for
the National Register, the Agency Official, in consultation with the
State Historic Preservation officer, may assume the property to be
eligible for purposes of section 106 of the Act.
Subpart C--Program Alternatives
Sec. 800.15 Federal agency program alternatives.
(a) Alternate procedures. A Federal agency may develop procedures
to implement Section 106 and substitute them for the comparable
provisions of subpart B if they are found consistent with the Council's
regulations in accordance with section 110(a)(2)(E) of the Act.
(1) Development of procedures. The Federal agency shall consult
with the Council in the development of alternate procedures and publish
notice of the availability of proposed alternate procedures in the
Federal Register.
(2) Council review. The Federal agency shall submit the final
alternate procedure to the Council for review.
(i) If the Council finds the regulations to be consistent with this
part, it shall notify the Federal agency and the Federal agency may
adopt them as alternate procedures.
(ii) If the Council does not find the procedures consistent, the
Council shall request the Secretary to make a final determination as to
consistency. If the Secretary determines the procedures to be
consistent, the Federal agency may adopt them as alternate procedures.
(3) Notice. The Federal agency shall publish notice of final
alternate procedures in the Federal Register.
(4) Legal effect. Alternate procedures adopted pursuant to this
section substitute for the Council's regulations for the purposes of
the agency's compliance with section 106 of the Act, except that, where
an Indian tribe has entered into an agreement with the Council to
substitute tribal historic preservation regulations for the Council's
procedures, the agency shall follow those regulations in lieu of the
agency's procedures regarding undertakings on tribal lands.
(b) Programmatic Agreements. The Council and the Agency Official
may negotiate a Programmatic Agreement to govern the implementation of
a particular program or certain complex project situations that justify
departure from the normal Section 106 process.
(1) Programmatic Agreements for agency programs. (i) The
consultation shall involve State Historic Preservation Officers or the
National Conference of State Historic Preservation Officers, Indian
tribes and Native Hawaiian organizations, other Federal agencies, and
other members of the interested public, as appropriate.
(ii) The Agency Official shall arrange for public participation
appropriate to the subject matter and the scope of the program.
(iii) The Programmatic Agreement shall take effect when executed by
the Council and the Agency Official. The President of the National
Conference of State Historic Preservation Officers shall be invited to
sign any agreement when the Conference has participated in the
consultation developing it. Compliance with the procedures established
by an approved Programmatic Agreement satisfies the agency's Section
106 responsibilities for all individual undertakings covered by the
agreement until it expires or is terminated by the agency or the
Council.
(iv) The Agency Official shall publish notice of an approved
Programmatic Agreement in the Federal Register and make any agency
procedures implementing the agreement readily available to the Council,
State Historic Preservation Officers, and the public.
(v) If the Council determines that the terms of a Programmatic
Agreement are not being carried out, or if such an agreement is
terminated, the Agency Official shall comply with subpart B with regard
to individual undertakings covered by the agreement.
(2) Programmatic Agreements for complex or multiple undertakings.
(i) A Programmatic Agreement is a Memorandum of Agreement that
establishes a process for dealing with the potential adverse effects of
complex projects or multiple undertakings carried out over an extended
period of time. A Programmatic Agreement shall be used:
(A) When effects on historic properties are similar and repetitive
or are multi-State or regional in scope;
(B) When effects on historic properties cannot be fully determined
prior to approval;
(C) When nonfederal parties are delegated major decisionmaking
responsibilities; or
(D) Where routine management activities are undertaken at Federal
installations, facilities, or other land-management units.
(ii) Such a Programmatic Agreement shall be developed in the same
manner as other Memoranda of Agreement under Sec. 800.6, provided that
if consultation pertains to an activity involving multiple undertakings
and the parties fail to reach agreement, then the Agency Official shall
comply with the provisions of subpart B of this part for each
individual undertaking.
(c) Exempted categories. (1) Criteria for establishing. An Agency
Official may propose a program or category of agency undertakings that
may be exempted from review under the provisions of subpart B, if the
program or category meets the following criteria:
(i) The actions within the program or category would otherwise
qualify as ``undertakings'' as defined in Sec. 800.17;
(ii) The potential effects of the undertakings within the program
or category upon historic properties are foreseeable and not likely to
be adverse; and
(iii) Exemption of the program or category is consistent with the
purposes of the Act.
(2) Council review of proposed exemptions. The Council shall review
a request for an exemption that is supported by documentation
describing the program or category for which the exemption is sought
and demonstrating that the criteria of Sec. 800.15(c)(1) have been met.
Unless it requests further information, the Council shall approve or
reject the proposed exemption within 30 days of receipt. The Council
decision shall be based on whether the exemption is consistent with the
purposes of the Act, taking into consideration the magnitude of the
exempted undertaking or program and the likelihood of impairment of
historic properties in accordance with section 214 of the Act.
(3) Legal consequences. Any undertaking that falls within the
exempted program or category approved by the Council shall require no
further review pursuant to subpart B, unless the Agency Official or the
Council determines that there are circumstances under which the
normally excluded undertaking should be reviewed under subpart B of
this part.
(d) Standard treatments. (1) Establishment. The Council may
establish standard methods for the treatment of a category of historic
properties or a category of effects on historic properties to satisfy
the requirements of subpart B of this part. The Council shall specify
such treatments, conditions for their application and any procedural
modifications attendant to their use in a notice published in the
Federal Register.
(2) Legal consequence. An Agency Official may elect to follow a
standard treatment to meet Section 106
[[Page 48594]]
responsibilities for a qualifying undertaking in accordance with
Sec. 800.5.
(e) Program comments. An Agency Official may request the Council to
comment on a category of routine or repetitive undertakings in lieu of
conducting individual reviews under Secs. 800.4 through 800.7. The
Agency Official shall identify the category of undertakings, specify
the likely effects on historic properties, specify the steps the Agency
Official will take to ensure that the effects are taken into account
and the time period for which the comment is requested. Unless the
Council requests additional documentation or notifies the Agency
Official that it will decline to comment, the Council shall comment to
the Agency Official within 45 days of the request. The Agency Official
shall take into account the comments of the Council in carrying out the
undertakings within the category and provide appropriate notice of the
Council's comments and the Agency Official's action in response. If the
Council objects to the proposed treatment or declines to comment, the
Agency Official shall continue to comply with the requirements of
Secs. 800.4 through 800.7 for the individual undertakings. The Council
may provide program comments at its own initiative.
Sec. 800.16 State, Tribal and Local Program Alternatives. (Reserved)
Sec. 800.17 Definitions.
Act means the National Historic Preservation Act of 1966 (16 U.S.C.
470-470w-6).
Agency means agency as defined in 5 U.S.C. 551.
Approval of the expenditure of funds means any final agency
decision authorizing or permitting the expenditure of Federal funds or
financial assistance on an undertaking, including any agency decision
that may be subject to an administrative appeal or rehearing procedure.
Area of potential effects means the geographic area or areas within
which an undertaking could cause adverse effects on historic
properties.
Comment means the findings and recommendations of the Council
formally provided in writing to the head of a Federal agency under
section 106 of the Act.
Consultation means the process of seeking and considering the views
of other participants in a manner appropriate to the particular
participants and the specific steps in the Section 106 process.
Council means the Advisory Council on Historic Preservation or a
Council member or employee designated to act for the Council.
Effect means alteration to the characteristics of a historic
property that qualified it for inclusion in or eligibility for the
National Register.
Head of the agency means the chief official of the Federal agency
responsible for all aspects of the agency's actions. If a State, local
or tribal government has been delegated responsibility for Section 106
compliance, the head of that unit of government shall be considered the
head of the agency.
Historic property means any prehistoric or historic district, site,
building, structure, or object included in, or eligible for inclusion
in, the National Register of Historic Places maintained by the
Secretary of the Interior. This term includes artifacts, records, and
remains that are related to and located within such properties. The
term includes properties of traditional religious and cultural
importance to an Indian tribe or Native Hawaiian organization that meet
the National Register criteria. The term ``eligible for inclusion in
the National Register'' includes both properties formally determined as
such in accordance with regulations of the Secretary of the Interior
and all other properties that meet the National Register criteria.
Indian tribe means an Indian tribe, band, nation, or other
organized group or community, including a Native village, Regional
Corporation or Village Corporation, as those terms are defined in
section 3 of the Alaska Native Claims Settlement Act (43 U.S.C. 1602),
which is recognized as eligible for the special programs and services
provided by the United States to Indians because of their status as
Indians.
Local government means a city, county, parish, township,
municipality, borough, or other general purpose political subdivision
of a State.
Memorandum of Agreement means the document that records the terms
and conditions agreed upon to resolve the adverse effects of an
undertaking upon historic properties.
National Historic Landmark means a historic property that the
Secretary of the Interior has designated a National Historic Landmark.
National Register means the National Register of Historic Places
maintained by the Secretary of the Interior.
National Register Criteria means the criteria established by the
Secretary of the Interior for use in evaluating the eligibility of
properties for the National Register (36 CFR part 60).
Native Hawaiian organization means any organization which serves
and represents the interests of Native Hawaiians; has as a primary and
stated purpose the provision of services to Native Hawaiians; and has
demonstrated expertise in aspects of historic preservation that are
significant to Native Hawaiians. ``Native Hawaiian'' means any
individual who is a descendant of the aboriginal people who, prior to
1778, occupied and exercised sovereignty in the area that now
constitutes the State of Hawaii.
Programmatic Agreement means a document that records the terms and
conditions agreed upon to resolve the potential adverse effects of a
Federal agency program or other situations in accordance with
Sec. 800.15.
Secretary means the Secretary of the Interior acting through the
Director of the National Park Service except where otherwise specified.
State Historic Preservation Officer means the official appointed or
designated pursuant to section 101(b)(1) of the Act to administer the
State historic preservation program or a representative designated to
act for the State Historic Preservation Officer.
Traditional cultural authority means an individual or a group of
individuals in an Indian tribe, Native Hawaiian organization, or other
social or ethnic group who is recognized by members of the group as
knowledgeable in the group's traditional history, cultural practices
and living human values.
Tribal lands means all lands within the exterior boundaries of any
Indian reservation and all dependent Indian communities.
Tribal Preservation Officer means the tribal official appointed by
the tribe's chief governing authority or as designated by a tribal
ordinance or preservation program as provided for and approved under
the provisions of section 101 of the Act.
Undertaking means a project, activity, or program funded in whole
or in part under the direct or indirect jurisdiction of a Federal
agency, including those carried out by or on behalf of a Federal
agency; those financed in whole or in part with Federal financial
assistance; those requiring a Federal permit, license or approval; and
those subject to State or local regulation administered pursuant to a
delegation or approval by a Federal agency.
[FR Doc. 96-23532 Filed 9-12-96; 8:45 am]
BILLING CODE 4310-10-P
